National Response Framework (Fourth Edition)
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National Response Framework t N ational Response Fra mework Fourth Edition October 28, 2019 i National Response Framework Executive Summary The National Response Framework (NRF) provides foundational emergency management doctrine for how the Nation responds to all types of incidents. The NRF is built on scalable, flexible, and adaptable concepts identified in the National Incident Management System (NIMS) to align key roles and responsibilities across the Nation. The structures, roles, and responsibilities described in this Framework can be partially or fully implemented in the context of a threat or hazard, in anticipation of a significant event, or in response to an incident. Implementation of the structures and procedures described herein allows for a scaled response, delivery of specific resources and capabilities, and a level of coordination appropriate to each incident. Responding to disasters and emergencies requires the cooperation of a variety of organizations; the larger or more complex the incident, the greater the number and variety of organizations that must respond. Think of a residential fire: Firefighters are leading the charge; public works may be on scene providing traffic control; police are providing security; emergency medical services personnel are triaging, transporting, and redistributing injured to local hospitals; and a local nonprofit or voluntary organization (e.g., American Red Cross and Salvation Army) may be on hand to assist displaced residents. For large disasters, such as major hurricanes or earthquakes, the incident complexity is increased as others—such as states or tribes and, ultimately, the Federal Government—become involved. Businesses, voluntary organizations, and other elements of the private sector are also key stakeholders, providing the essential services that must be restored following an incident. The NRF provides the foundation for how these organizations coordinate, integrate, and unify their response. The unprecedented scale of recent disasters has spurred continued innovation in response operations and highlighted the need for further progress to build resilient capabilities to respond to disasters of increasing frequency and magnitude. This fourth edition of the NRF embraces lessons-learned from those disasters and shares emerging best practices. Since publication of the third edition of the NRF in 2016, disaster response operations have underscored the paramount importance of sustaining essential community lifelines. The Framework defines community lifelines as those services that enable the continuous operation of critical government and business functions and are essential to human health and safety or economic security. If disrupted, rapid stabilization of community lifelines is essential to restoring a sense of normalcy. Recent disasters have illuminated two underlying features of community lifelines that highlight opportunities to strengthen response planning and operations. First, community lifelines are interdependent and vulnerable to cascading failures. For example, communications and electric power systems rely on each other to function; severe damage to one will disrupt the other. Most lifelines also rely on complex supply chains. Water and wastewater service depend on the resupply of a broad array of chemicals and—if power goes out—fuel for emergency generators. However, in a severe natural or human-caused incident, those supply chains themselves may be broken. Second, community lifeline stabilization relies on businesses and infrastructure owners and operators who have the expertise and primary responsibility for managing their systems in emergencies. Accordingly, new doctrine and coordination mechanisms are needed to enable the private sector to play a larger, more comprehensive role in preparedness and response activities. The NRF is structured to help jurisdictions, citizens, nongovernmental organizations (NGO), and businesses develop whole community plans, integrate continuity plans, and build capabilities to respond to cascading failures among businesses, supply chains, and infrastructure sectors, as well as collaborate with the private sector and NGOs to stabilize community lifelines and enable restoration ii National Response Framework of services in severe incidents. Critical infrastructure sector leadership (sector-specific agencies, government coordinating councils, and sector coordinating councils) create an established network to collaborate with their respective private sector partners and support cross-sector1 response operations. Often, Emergency Support Functions (ESF) work with sector leadership to bolster preparedness for cross-sector collaboration. This fourth edition of the NRF describes new initiatives that leverage existing networks and better integrate business interests and infrastructure owners and operators into the heart of emergency management. The NRF describes ways to improve coordination and response structures to build preparedness for catastrophic incidents. Stabilizing community lifelines in catastrophic incidents is vital and extraordinarily difficult. Communities cannot meet these challenges solely by scaling up existing plans and capabilities. Rather, new mechanisms are needed to supplement and integrate those already in place and facilitate cross-sector coordination, while respecting the roles of private sector partners and authorities of agencies at all levels of government. A new ESF #14 – Cross-Sector Business and Infrastructure is introduced to focus on engaging private sector interests and infrastructure owners and operators—particularly those in sectors not currently aligned to other ESFs—and conducting cross-sector analysis to help inform decision making. ESF #14 relies on other ESFs aligned with a critical infrastructure sector to continue coordination with their corresponding sector during response efforts. ESF #14 helps coordinate multi-sector response operations between (or across) the government and private sector for natural or human-caused catastrophic incidents that jeopardize national public health and safety, the economy, and national security. This edition of the Framework also builds on the response approach in previous editions to address national security emergencies. The National Security Strategy of the United States of America notes that potential adversaries are developing advanced weapons and capabilities that could threaten U.S. critical infrastructure.2 Adversaries may also strategically target attacks to exploit interdependencies between infrastructure sectors and magnify cascading failures between them, posing incident response challenges above and beyond those created by earthquakes or other catastrophic natural hazards. The initiatives in this Framework address the resulting challenges for consequence management in ways that supplement and support other government, private sector, and NGO plans and coordinating structures. 1 Cross-sector operations are those actions taken by public and private sector organizations from one or more of the 16 critical infrastructure sectors to help entities or facilities associated with other sectors respond to an incident, being focused on preventing or mitigating cascading failures between sectors and restoring critical supply chains. 2 For more information on the National Security Strategy of the United States of America, see https://www.whitehouse.gov/wp-content/uploads/2017/12/NSS-Final-12-18-2017-0905.pdf. iii National Response Framework Table of Contents Introduction ................................................................................................................... 1 Evolution of the Framework ...................................................................................................1 Framework Purpose and Organization .................................................................................2 Scope..........................................................................................................................................3 Intended Audience ...................................................................................................................5 Guiding Principles ...................................................................................................................5 Foundational Components ........................................................................................... 8 Prioritized Stabilization of Community Lifelines .................................................................8 National Incident Management System ...............................................................................11 Core Capabilities ....................................................................................................................12 Operational Coordination ........................................................................................... 15 Private Sector Engagement ...................................................................................................15 Locally Executed Response ...................................................................................................16 State, Tribal, Territorial, and Insular Area Managed Response ......................................18 Federally Supported Response .............................................................................................19 Roles and Responsibilities for Response ................................................................. 25 Communities ...........................................................................................................................26